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The Defense Science Board2001 Summer Study

on

DEFENSE SCIENCE ANDTECHNOLOGY

May 2002

Office of the Under Secretary of Defense for Acquisition, Technology, and Logistics

Washington, D.C. 20301-3140

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Report Documentation Page Form Approved OMB No. 0704-0188 Public reporting burden for the collection of information is estimated to average 1 hour per response, including the time for reviewing instructions, searching existing data sources, gathering andmaintaining the data needed, and completing and reviewing the collection of information. Send comments regarding this burden estimate or any other aspect of this collection of information,including suggestions for reducing this burden, to Washington Headquarters Services, Directorate for Information Operations and Reports, 1215 Jefferson Davis Highway, Suite 1204, ArlingtonVA 22202-4302. Respondents should be aware that notwithstanding any other provision of law, no person shall be subject to a penalty for failing t o comply with a collection of information if itdoes not display a currently valid OMB control number.

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This is a product of the Defense Science Board (DSB).

The DSB is a Federal Advisory Committee established to provide independent advice to

the Secretary of Defense. Statements, opinions, conclusions and recommendations in thisreport do no necessarily represent the official position of the Department of Defense.

This report is unclassified.

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OFFICE OF THE SECRETARY OF DEFENSE 3140 DEFENSE PENTAGON

WASHINGTON. DC 20301-3140

DEFENSE SCIENCE BOARD

JU N 4 2002

MEMORANDUM FOR PRINCIPAL DEPUTY UNDER SECRETARY OF DEFENSE (ACQUISITION, TECHNOLOGY LOGISTICS)

SUBJECT: Final Report of the Defense Science Board (DSB) Summer Study Task Force on Defense Science an d Technology

I am pleased to forward the final report of the DSB Task Force on Defense Science and Technology. he Task Force was tasked to address issues involved in assuring that the U.S. continues to gain access to and develop technology from which to gain military advantage. he Task Force looked at future technologies that should be developed and exploited for military application, with particular emphasis on those potential technologies that can provide the U.S. military an asymmetric advantage.

The Report makes substantive recommendations on the content an d conduct of the DoD science and technology program. In their report, the Task Force states that the Department of Defense must be enabled by transformation of its science an d technology enterprise an d must continue to adapt rapidly to meet challenges and exploit opportunities.

endorse all of the Task Force's recommendations an d propose you review the Task Force Co-Chair's letter an d report.

w X u AJ

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OFFICE OF THE SECRETARY OF DEFENSE 3140 DEFENSE PENTAGON

WASHINGTON. DC 30301-3140

DEFENSE SCIENCE BOARD

MEMORANDUM FOR THE CHAIRMAN, DEFENSE SCIENCE BOARD SUBJECT: Final Report f he Defense Science oard Summer tudy n

Defense Science and Technology

Transformation f he epartment f efense ust e nabled y transformation of its science and technology enterprise, which is a critical enabler fo r uperior arfare apabilities. oday's ational ecurity nvironment s characterized by uncertainty and by a rapid pace of change. he DoD science and technology program needs o ontinue o dapt apidly o meet hallenges nd exploit opportunities that arise in this environment.

The ummer study ask force was sked o review nd valuate three reas: (1) ow he Department's S T nvestment hould e pent; 2) he evel f investment hat hould e ade n cience nd echnology; nd 3) ow he military can ealize he most alue rom his nvestment. n ddition, he ask force as sked o xamine he ontribution f he oD aboratories n his changing world.

The ask force elieves hat ignificant hanges re needed n oth he content nd onduct f he DoD cience nd echnology rogram he Department s o ontinue o ustain ecisive military dvantage nto he future.

Our ecommendations ocus n ransforming he epartment's T enterprise. hey fall in seven areas: 1 nvest in new S T initiatives in support of four transformational

challenges: efending gainst iological arfare efense, inding difficult argets, m king imely nd ccurate decisions, nd nabling high-risk operations. xpand and provide more focused management for ongoing related S T programs.

2. aintain he evel of S T nvestment t percent of he verall DoD udget s urrently lanned y he epartment. rovide ddition l unds or ew T riorities y eprioritizing urrent

programs.

3. xploit commercial technology through expanded use of commercial products and processes; elimination of barriers for commercial firms to do business with he DoD; nd ew nitiatives o orge elationships with commercial industry.

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4. oster operational experimentation as an ntegral element of a new S T nterprise hrough ssigned xperimental nits nd ustained senior attention.

5. stablish ew echnology ransition rocess ith ide se f spiral development, outine nclusion of ndependent ed eams, nd acceleration f he cquisition ycle. est esponsibility or oint operational experimentation, ACTDs, nd transition with the Director of Transformation.

6. nable development a nd acquisition of joint R D by establishing points of clear esponsibility n oint C4ISR nd biologic l arfare defense.

7. estructure he DoD aboratories nd ebuild he scientific nd engineering workforce based on major review of the function nd workforce in each laboratory.

Implementation f his et of ecommendations ill rovide n normous improvement

n

he

ocus and

effectiveness of the

defense

S T

enterprise.

e believe that we have identified those changes that will offer the greatest beneficial

results today.

Only odest unding s equired o ully mplement ll f he recommendations made in this report. he Department should be able to expand existing programs nd onduct ew S T nitiatives o upport ransformational challenges ithout ew unding y eprioritizing ithin he T rogram. Funding or perational xperimentation nd echnology ransition hould row over the span of several years.

This study was completed prior to the events of September 11 , 2001 nd those happenings re herefore ot eflected n he ext. owever, eview f he recommendations

n

ight

of that

vent

onfirms

he

alidity

of

the

onclusions and the need to accelerate implementation.

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_______________________________________________________ Table of Contents

i

TABLE OFCONTENTS

PREFACE .........................................................................................iii

E XECUTIVE SUMMARY ................................................................... v

C HAPTER IOVERVIEW AND R ECOMMENDATIONS ............................................... 1

Scope and Study Approach.................................................... 3

Transformational Challenges: S&T Investment Priorities .... 6

S&T Investment Strategy .................................................... 15Process Improvements in the S&T Enterprise..................... 19

Final Thoughts ..................................................................... 30

C HAPTER IIM ILITARY APPLICATIONS ................................................................ 33

Analytic Approach............................................................... 35

Identifying Military Needs .................................................. 36

High Priority Military Needs ............................................... 53

S&T and Operational Interface............................................ 89Conclusions and Recommendations .................................... 92

C HAPTER IIITECHNOLOGY ................................................................................. 97

Introduction ......................................................................... 99

The Technology Landscape Today.................................... 101Biological Warfare Defense:Pathogen to Hit............................................................... 108

No Place to Hide: Microsensor Networks ......................... 116

10 N Wargaming: Peer-to-Peer Wargaming ...................... 12210X Human Warrior:Enhancing Human Performance ........................................ 130

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DSB Summer Study onDefense Science and Technology ___________________________________________

ii

Basic Science Investments Nano and Quantum Technology ........................................ 136

Conclusions ....................................................................... 147

C HAPTER IVI NVESTMENT STRATEGY ............................................................... 149

Embed S&T Activities Within an ExpandedSpiral Development Process .............................................. 154Exploit Commercial and Other Non-DoDSources of Technology ...................................................... 164Make the DoD Laboratories More Efficient and MoreProductive .......................................................................... 170

Allocation and Level of S&T Funding .............................. 173

Summary of Recommendations Related to theS&T Enterprise .................................................................. 178

ANNEX A. TERMS OF R EFERENCE ............................................... 181

ANNEX B. TASK FORCE MEMBERSHIP ........................................ 185

ANNEX C. PRESENTATIONS TO THE TASK FORCE ......................... 187

ANNEX D. M ILITARY PRIORITIES QUESTIONNAIREPROVIDED COMBATANT COMMANDERS ........................................ 191

ANNEX E. POWER ....................................................................... 195

ANNEX F. BACKGROUND AND CURRENT ASSESSMENT OF U NMANNED GROUND VEHICLE TECHNOLOGY ........................ 207

ANNEX G. R EMOTER FORCE ....................................................... 221

ANNEX H. GLOSSARY OF ACRONYMS AND ABBREVIATIONS ....... 225

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iv

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_____________________________________________________ Executive Summary

vii

S&T C HALLENGE #2:F INDING DIFFICULT T ARGETS __________________________

Recent operational experiences indicate a need to improve themilitarys ability to find targets that are concealed by camouflage, foliage,or structure, or that are underground; to identify moving targets, especiallyin adverse weather; and to discriminate decoys from real targets. TheUnited States needs a fully-integrated, layered intelligence, surveillance,and reconnaissance (ISR) capability. The task force believes that with amore focused effort over the next decade, progress in developing such asystem is possible. S&T efforts will need to focus on developing newcapabilities in remote sensing and data processing.

The focused project recommended in this area is referred to as Micro-Sensor Networks. Proliferated surface sensors can provide another tier ofa layered defense, complementing airborne sensors and unmanned aerialvehicles with sensors that operate underneath concealment.Technological developments in micro-sensorsmaking them morecapable, smaller, diverse, and lower in costas well as advances inadaptive networks provide an opportunity to develop the surface-basedsensing tier.

S&T C HALLENGE #3:M AKING T IMELY , A CCURATE DECISIONS _________________

Today military planning takes a long time, which may result in plans

that do not reflect reality at the time a mission is executed. The task force believes that a focused, expanded S&T program can result in a much moreeffective, integrated, automated decision support system, capable of beingused to synchronize both individuals and groups in joint and combinedoperations. Such a system would include automated decision supportservices as well as self-configuring, self-healing mobile networks.

Better decisions can also be enabled by increasing leadershipexperiences and by a more diverse set of operational tactics and doctrine.Because of its powerful potential, the recommended focused project toaddress this challenge is the exploration of Massive Multi-PlayerGaming. This new cultural and technical phenomenon offers the

potential for a new way to devise and to explore military concepts. Thevirtual environment provides a platform in which many individuals can

participate regardless of location, an opportunity for free-formexperimentation, and the potential for faster, more innovative conceptdevelopment.

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viii

S&T C HALLENGE #4:E NABLING H IGH -R ISK O PERATIONS ____________________

The majority of military casualties occur in close combat. Unmannedsystems offer the potential to effectively engage the adversary whilelessening friendly losses. Advances have been made in software agentsand robotic control technology that can accelerate the development ofunmanned systems. The task force advocates an expansion of existingS&T programs in unmanned systems that focus on operationaldemonstrations designed to achieve specific missions such as an urbanassault in a free-fire zone.

Combat performance is also limited by the human element. The potential for improving human performance is sufficiently exciting thata program of research and development should be undertaken in that area.Demands on the warfighter are growing as operational tempo and thesophistication of weapon systems increases. Improving human

performanceusing a myriad of techniques that could increase strength,memory, or sensory perception or decrease requirements for sleep andfoodis one way to advance warfighting capabilities.

S&T INVESTMENTSTRATEGY

The task force believes the four transformational challengesdescribed above are appropriate investment priorities for the

Department.

The figure below summarizes the estimated level of current investmentas well as the recommended new investment in each of the areasdiscussed. In the aggregate, research in the areas of the fourtransformational challenges and in the areas recommended by the taskforce for long-term basic research, currently receive funding of about $1.7

billion per year. The task force recommends increasing this investment by$1.8 billion, to approximately double the annual funding for these

programs and thus make possible the changes and initiativesrecommended by the task force. Funding for these initiatives should comefrom reprioritizing existing S&T programs (15-20 percent of the currentS&T funding), although other sources are also appropriate, such aschanges in accounting for advanced concept technology demonstrations(ACTDs).

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ix

Each of the S&T programs discussed (listed in the top row of thefigure) should be managed by a single organization but executed by those

best qualifiedwhich typically will include many organizations. The taskforce recommends that the Defense Threat Reduction Agency (DTRA) begiven the responsibility for biological warfare defense S&T and that theother programs in the upper row be managed by the Director, DefenseResearch and Engineering (DDR&E) but with more control than iscommon today. The focused, high-payoff projects in the second row are

particularly well suited to the Defense Advanced Research Project Agency(DARPA) style of project-oriented management. Research can bemanaged loosely, as is the current practice today.

S&T I NVESTMENT :R ECOMMENDATION #1 ________________________________

The additional resources needed to fund the four S&T initiativesdescribed should eventually reach a total of about $1.8 billion annually.These initiatives can be funded through three measures.

The Secretary of Defense should Achieve and sustain investment in S&T of 3 percent (of thetop line DoD budget.

The Under Secretary of Defense for Acquisition, Technology and Logistics (USD (AT&L)) should

HumanPerformance

Massive Multi - player

Gaming

Micro -SensorNetworks

Pathogen toHit

New S&T Projects

UnmannedSystems

DecisionTools

Network S&T

ISR S&T(sensors,

exploitation)

BW DefenseS&T

Focused OngoingS&T Programs

HumanPerformance

Massive Multi - player

Gaming


Pathogen toHit

New S&T Projects

UnmannedSystems

DecisionTools

Network S&T

ISR S&T(sensors,

exploitation)

BW DefenseS&T


Transformational Challenges

Quantum Nano -technology Long TermResearch

$250 + $750M

$0 +$200M $50 +$100M $0 + $20M $150 + $30M

$50 + $150M$250 +$150M $650 +$200M

$150 +$100M

$100 + $75M

Defending Against

Biological Warfare

FindingDifficult

Targets

MakingTimely,

AccurateDecisions

EnablingHigh-Risk

Operations

Current Funding (est)~$1.7B

Increased Funding~$1.8B

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x

Reprioritize 15-20 percent of the current S&T budget overthe next two to three years.

Provide $500 million of 6.4A funds to move current ACTDs from 6.3 and use current 6.3 funds as part of funding newinitiatives.

M ANAGING S&T I NITIATIVES :R ECOMMENDATION #2 _______________________________

Managing the recommended S&T initiatives should take differentform for different projectsoptions include direction under a single focal

point, management within DDR&E, a project-oriented approach like thatof DARPA, and coordination as scattered efforts.

The USD (AT&L) should

Establish a single focal point for biological warfare defense S&T.

Re-institute the Format-I to provide muscle for the DDR&E to effectively control focused ongoing S&T programs.

PROCESS IMPROVEMENTS

IN THE S&T ENTERPRISEThere is an imperative related to each of the transformational

challenges: the need to capture and exploit technological advances thatare progressing largely in the commercial worldand that are progressingat great speed. The Departments science and technology enterprise must

become more agile, more flexible, and more adaptive to be effective inthis challenging environment. In particular, as technology becomes morerapidly available to potential adversaries, DoD must be able to incorporatethe latest technology into military capabilities more rapidly as wellintimeframes measured in months, not decades.

Over the last ten years, the Defense Science Board alone hasconducted nearly three-dozen studies on improving processes in the S&Tenterprise. Drawn from this body of work, this task force has identifiedtwo areas that have the potential to transform the entire S&T,acquisition, and requirements process . They are as follows:

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xi

Assuring access to developing commercial technology .

Adopting an integrated process of operationalexperimentation, spiral development, and technologytransition to users.

In addition, the task force believes it is important to comment on andmake suggestions regarding one long-standing and much-studied problem:rejuvenation of the DoD laboratories .

ACCESS TO C OMMERCIAL T ECHNOLOGY :R ECOMMENDATION #3 ________________________________

The Department of Defense no longer leads in the development ofmany technologies essential in enabling the nations future militarysuperiority. Because of its complex and burdensome system of

procurement regulations and processessuch as accounting andinformation system requirementsthe Department continues to deny itselfaccess to many industries.

To improve access to commercial industry and ensure continuedexploitation of commercially developed technology, the Department must

pursue a three-prong approach: 1) provide incentives within DoD to usecommercial products, practices, and processes as the norm; 2) reduce

barriers that inhibit commercial firms from working with DoD contractorsand with DoD directly; and 3) foster relationships and create newincentives with critical technology sectors to motivate them to apply their

knowledge and people to critical national security challenges.The USD (AT&L) should

Mandate the use of commercial practices, tools, techniques,components, software, and materials in DoD systems byestablishing commercial technology as the norm; require

justification for DoD-specific technology.

Develop and implement acquisition processes that removebarriers and create incentives for commercial corporationsto support DoD.

The Secretary of Defense should

Personally engage with the biotechnology and pharmaceutical industries to build relationships with DoDand create effective partnerships.

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xii

Forge close relationship with the Secretary of Health and Human Services.

O PERATIONAL E XPERIMENTATION :R ECOMMENDATION #4 _______________________________

The Department of Defense must dramatically improve its S&T andacquisition processes or risk being out-paced by its adversaries. In

particular, there is a need for more rapid transition from technology tosystem within timeframes that are measured in weeks or months.Operational experimentation and spiral development, properly executed,force a more integrated approach and provide the basis for an improvedtechnology transition process.

Operational experimentation addresses all three elements of the

Departments transformation processchanges in organization of forces,changes in doctrine and tactics, and changes in technology. The value ofexperimentation is to pursue many options and ideas and to provide aforum for collaboration between the operational warfighter andtechnologist.

The Chairman, Joint Chiefs of Staff should

Form experimental units in each Service and Joint ForcesCommand.

Form corresponding, dedicated operational red teams.

Assign senior points of responsibility for fosteringoperational innovation and full use of experimentation.


Provide funds for Joint and multi-Service experimentation.

Fund and support increased use of ACTDs. Decreasetimescales and formality.

A N EW T ECHNOLOGY T RANSITION PROCESS :R ECOMMENDATION #5 _______________________________

The science and technology and acquisition processes need to beconsidered as a single enterprise. Within this enterprise, the purpose ofthe S&T community is to generate options and opportunities for thewarfighter. Significant changes are needed to more closely integrateoperational experimentation, spiral development, and technology

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xiii

transitionproviding a path from the S&T base to the user. Key elementsof a new approach include a dramatically shorter acquisition cycle,expanded use of red teaming, expanded use of ACTDs, spiraldevelopment, and operational experimentation.


Implement the new process outlined for innovative conceptdevelopment and expanded use of red teams and ACTDs.- Mandate 5-year acquisition cycle.Give the Director of Transformation responsibility for jointoperational experimentation, ACTDs, and technologytransition .

Provide 6.4A funds to catalyze change .- New funds growing to ~1.4 billion per year.- Approximately $650 million of this funding should be

under direct control of the Director of Transformation; the balance should be in ACTDs under Services.

Red Thinking

&

Red Teams

S&T

(Opportunities, ideas,flashes of insight)

Operational Experiments

Concepts of Employment,

usefulness/military value)

ACTD-likeactivities

(Augment)

Acquisition Programs

Limited Buys

S&T

6.4a

6.4a

MS-A

MS-C

MS-B

5yrs

Block 1Block 2

Block 3

Field inSpiral

Development

Whats New

S&T driven by 5-yearacquisition cycle

Pulls S&T

Dynamic & iterative

Red teaming & action

Rapid spiraldevelopment

More experimentsbringing playerstogether

Expanded ACTDs asthe S&T customer

Rapid acquisition funds

BlueThinking &

Operations

Rapid AcquisitionFunding

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xiv

R ESPONSIBILITY FOR J OINTR ESEARCH AND DEVELOPMENT :R ECOMMENDATION #6 _______________________________

There is a special case in the technology transition area that requiresfurther action: the lack of a joint development organization for critical

joint warfighting capabilities. Without a joint development organization,there is no customer pull and there is no integrated approach to systems orsolutions. Three areas where the problem has become acute are jointcommand and control; joint intelligence, surveillance, and reconnaissance;and biological warfare defense.

The Secretary of Defense should

Establish organizations and activities responsible for jointresearch, development and acquisition in command,control, communications, and computers and intelligence,surveillance, and reconnaissance (C4ISR). - Joint Forces Command and a Joint Program Office (co-

located)- Adequate technical and acquisition support

Establish single point responsibility for biological warfaredefense research, development and acquisition at DTRA.

R EJUVENATING THE DO D L ABORATORIES :

R ECOMMENDATION

#7 _______________________________ Numerous studies have looked at the DoD laboratory system,

identifying serious problems. However, few have focused on the diversenature of laboratory functions as a basis for rejuvenating the laboratorysystem. Much of the activity conducted in the laboratories, and themajority of funds expended in or flowing through the laboratories, are notrelated to S&T. The laboratories are involved in engineeringdevelopment, testing, in-service support and engineering, and acquisitionsupport. With a better understanding of the activities, functions, andworkforce of each laboratory, it should be possible to significantly reshapethe laboratory structure.

The USD (AT&L), with direction of the Secretary of Defense, shouldinstruct the DDR&E to

Review each laboratory in detail and determine individualcourses of action, to include the following:

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xv

- Administrative personnel transfers.- University management.- Privatization, consolidation, or closure.

Complete review and begin taking action within 9 monthswith end goal of 2005.

In any case, especially for those likely to remain structuredas they are, implement recommendations of the most recent

Defense Science Board study, Efficient Utilization of Defense Laboratories (October 2000).- Focus on personnel and quality improvements.

IN CONCLUSIONTwo challenges will fundamentally change the nature of the S&T

enterprise and military capability:

Rapid technology transitiontime matters.

Transformation to new ways of fighting.

Technology is one enabler of new military capabilities and is typicallymost effective only in the context of new concepts of operations anddoctrine. To accomplish both rapid technology transition andtransformation to new ways of fighting, the Department must change its

S&T enterprise through operational experimentation, rapid spiraldevelopment, and evolutionary acquisition. Only then will theDepartment be able to fully realize the benefits of the S&T investmentsdescribed in this report.

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xvi

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____________________________________ CHAPTER I

O VERVIEW ANDR ECOMMENDATIONS

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Chapter I. Overview ___________________________________________________ and Recommendations

3

Over the years, the DoD science and technology (S&T) program hasdiscovered, invented, harnessed, and demonstrated technologies that have

become key enablers of military advantage. However, the technologylandscape has undergone many changes in recent yearsindustry has

become more global, scientific endeavors in other countries have becomemore competitive, and affordable technology increasingly issues fromcommercial sources. As a result, the DoD science and technology

program needs to continue to adapt to this evolving landscape to meetchallenges and exploit opportunities that arise.

Significant changes are needed in both the content and conduct ofthe DoD science and technology program if the Department is tocontinue to sustain a decisive military advantage . This report makesrecommendations in the following areas:

New initiatives and sustained S&T efforts.

The level of S&T investment.Adaptation of commercial technology.

Operational experimentation.

The technology transition process.

Research and development for joint requirements.

DoD laboratories.

This introductory chapter discusses each of these issues and states thetask force recommendations. The recommendations are discussed in

further detail in the chapters that follow.

SCOPE ANDSTUDY APPROACH

The Defense Science Board 2001 Summer Study task force was askedto examine three areas: 1

How the Departments S&T investment should be spent .

What future technologies should be developed and exploitedfor military application? Characterize essential attributes ofthe Departments S&T investment.

1 The complete terms of reference for the Defense Science Board Summer Study on DefenseScience and Technology can be found in Annex A. Annex B lists the members of the summerstudy task force.

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4

The level of investment in science and technology . Howmuch of the Departments budget should be invested inscience and technology endeavors, today and in the future?

How the military can realize the most value from thisinvestment . What changes can be made in the way theDepartment manages and executes its S&T program toimprove the return on its S&T investment?

STUDY APPROACH _______________________________

Changes in the national security environment mean changes for thescience and technology program. To be successful, the Departments S&T

program must address:

New threats and multiple adversaries.

Emerging disruptive technologies that are drivencommercially and globally, not by DoD. 2

Increased speed with which knowledge spreads andtechnology is applied.

Asymmetric costs of some weapon exchanges.

To assess the success with which the Departments S&T enterprise isresponding to these challenges, the task force pursued two separate butnecessarily related paths, as Figure 1-1 depicts: it examined the need fornew military capabilities and technological opportunities. 3

At the intersection of these two paths, the task force identified a set ofkey transformational challenges for the DoD. Each of these challenges issufficiently important that it deserves a well-focused, aggressive effort to

bring the military capability to the warfighter.

For each of the four challenges, the task force examined supportingscience and technology programs and made recommendations. In somecases the task force recommends augmentation of and/or better focus forongoing programs. Specific new initiatives were identified as pacesetterswithin the focused programs. In addition, the task force examined theDepartments investment in basic research.

2 Disruptive technologies are those technologies that tend to change processes or approaches tocapability as opposed to bettering existing processes or approaches in an evolutionary way.

3 A separate panel of the Summer Study task force addressed each of these paths. The MilitaryApplications panel examined military capabilities; Chapter II contains the findings of theireffort. Chapter III presents the work of the Technology panel, which focused its efforts onexploring technological opportunities.

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5

Figure 1-1. Study Approach

Finally, the task force examined the institutions and processes thatunderpin or interface with the S&T enterprise. 4 There have been manystudies and recommendations in these areas over the past decade whichhave recognized serious problems. Rather than review or repeat the priorrecommendations, this study tried to identify and concentrate on a smallnumber of improvements that would yield the greatest impact. The twoareas believed to have the potential to transform the science and

technology process were:Assuring access to developing commercial technology.

Adoption of an integrated process of operationalexperimentation, spiral development and transition oftechnology to the users.

In addition, it became clear, as a result of this assessment, that there isa lack of a customer for S&T in some critical areas, particularly jointcommand and control; joint intelligence, surveillance, and reconnaissance(ISR); and biological warfare (BW) defense. As a result, there is anabsence of customer pull for new technology in these areas. That in turn

impedes both the supporting S&T program execution and the speed oftechnology transition.

4 A third panel, Investment Strategies, examined the policies and processes that drive the S&Tenterprise. Their work is reported in Chapter IV.

S&T

Military Need for New Capability

TechnologicalOpportunities

CustomerSystems,

e.g., Joint ISR


S&T Initiatives

Basic Research;Identify & ExploitMilitary Potential

TransformationalChallenges

TransformationalChallenges

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6

TRANSFORMATIONAL CHALLENGES:S&T INVESTMENT PRIORITIES

In deriving S&T investment priorities, the task force sought answers tosome fundamental questions from a broad audience in the national securitycommunity. It sought to understand:

What most worries current Combatant Commanders?

What must the Services do well operationally?

Where are the consequences of operational failureunacceptable?

What is necessary to enable future operational concepts?

What dangers do threats pose for operational capabilities?

What technological advancement will strongly influenceglobal military capabilities?

How will current and emerging technologies actually affectwarfare?

The responses to these questions were instructive, and discussion withthe Commandant Commanders was particularly illuminating. Theseinputs helped the task force derive nine high-priority military needs:(1) biological weapon defense, (2) location of difficult targets,(3) timely and accurate decision making, (4) enablers of high-riskoperations, (5) missile defense, (6) affordable, precision munitions, (7)

enhanced human performance, (8) rapid deployment and employment, and(9) global effects. Each of these needs is critical and recommendations forrelated science and technology and acquisition programs for each one arediscussed in detail in Chapter II.

These military needs were then subjected to further tests to determinewhich should be the highest priorities for defense S&T. This additionalfiltering considered the following:

Are these vital military capabilities? The task forcedetermined that all of them are.

Is there a technological opportunity to advance that woulddeliver enduring advantage, for a decade or more? In someareas, such as global effects, a substantive technologyenabler was not yet evident.

Finally, is there a need for more focus or acceleration inthe S&T program? The task force found that ongoing

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programs already provide emphasis in a number of areasincluding missile defense, Future Combat System, rapiddecisive operations, affordable munitions, space, and high-energy weapons.

In the end, four transformational challenges, shown in Figure 1-2,emerged from this filter. These four challenges will provide real military

potential if given more focus and acceleration:

Defending against biological warfare.

Finding difficult targets.

Making timely, accurate decisions.

Enabling high-risk operations.

Figure 1-2. Four Transformational Challenges

Human

Performance

Massive Multi-PlayerGaming


Pathogen to

Hit

New S&T Projects

UnmannedSystems

DecisionTools;

Network S&T

ISR S&T(sensors,

exploitation)

BW DefenseS&T


Human

Performance

Massive Multi-Gaming


Pathogen to

Hit

New S&T Projects

UnmannedSystems

DecisionTools;

Network S&T

ISR S&T(sensors,

exploitation)

BW DefenseS&T



Long Term Nano - Quantum Research technology

Human

Performance

Massive Multi-PlayerGaming


Pathogen to

Hit

New S&T Projects

UnmannedSystems

DecisionTools;

Network S&T

ISR S&T(sensors,

exploitation)

BW DefenseS&T


Human

Performance

Massive Multi-Gaming


Pathogen to

Hit

New S&T Projects

UnmannedSystems

DecisionTools;

Network S&T

ISR S&T(sensors,

exploitation)

BW DefenseS&T



Long Term Nano - Quantum Research technologyLong Term Nano - Quantum Research technology

Defending Against

Biological Warfare

FindingDifficultTargets

MakingTimely,

AccurateDecisions

EnablingHigh-Risk

Operations

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These four transformational challenges are discussed below. For eachone, the task force identified an ongoing S&T effort that warrantssignificant augmentation, acceleration, and increased focus. It alsoidentified a particularly high-payoff and timely new project within each.

In addition to these focused programs, the task force found that theDepartment should continue its level of effort in basic research. This

program is particularly crucial to avoiding technological surprise. Nanotechnology and quantum science are examples of such research.These are areas that could, as technology matures, either provideexceptional new capabilities or, if in the hands of adversaries, denyimportant capabilities to the United States.

C HALLENGE #1:DEFENDING AGAINST BIOLOGICAL W ARFARE ____________

Biological agents present a new threat to the U.S. military, allies, andhomeland. The only effective strategy against this threat is to broadlyaddress all dimensions of defense from deterrence to therapeutics. Thetopic of biological warfare defense has been addressed in three recentDefense Science Board (DSB) studies, which concluded that: 5

The present U.S. defense effort will not effectively counter thecurrent threat.

This effort is hampered by an absence of a vision of what isrequired and lacks leadership and coherent organization.

The task force believes that it is critical to develop a DoD-widestrategy for biological defensea recommendation made by all threerecent DSB studies. That strategy still needs to be implemented. A DoD-wide strategy should be supported by a comprehensive science andtechnology program for BW defense . An S&T program should addressall facets of biological warfare defense: warning, detection andcharacterization, passive protection, intelligence, incident response,forensics, collective protection and decontamination, diagnostics, andvaccines and therapeutics. Each of these areas needs serious and focused

5

The Defense Science Board 1999 Summer Study Task Force on 21 st

Century DefenseTechnology Strategies, Volume I (Washington, DC: Office of the Under Secretary of Defensefor Acquisition, Technology, and Logistics), 1999; Protecting the Homeland , Report of the

Defense Science Board Task Force on Defense Against Biological WeaponsLeveraging Advances in Biotechnology and Medical Informatics to Improve Homeland BiodefenseCapabilities , 2000 Summer Study, Volume IV; and Report of the Defense Science Board/Threat

Reduction Advisory Committee Task Force on Biological Defense, (Washington, DC: Office ofthe Under Secretary of Defense for Acquisition, Technology, and Logistics), June 2001.

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S&T research. Even partial or incremental S&T results would collectivelyenable an improved defense posture.

The Department is addressing a number of these areas, but the current program is not coordinated in a way that will provide an effective,integrated defense. Moreover, the current program needs an infusion ofresources: an increase from the current $250 million to at least $1billion per year. Additional resources are likely to be required in thelonger term. With an aggressive effort, the Department can be successfulin addressing the challenge of biological defense.

Pathogen to Hit

Biological agents are terror weapons in part because the nation lackseffective therapeutic responses. Today, it takes roughly 10 to 15 years todevelop a safe drug for a specific purpose.

The task force believes that it is possible for the United States todevelop a therapeutic response for bioagents. The process of finding aneffective drug to halt the damaging process that ensues when a pathogenenters the body has two steps. The first step is moving from a pathogen toa hit. The hit is a candidate drug that will intervene in the damaging

process that the pathogen triggers. There are two parts to finding a hit: (1)analysis of the pathogen identifies (multiple) targets of intervention whichif successful will halt the destructive process; and (2) drug candidategeneration which produces candidate drugs that are optimized for theireffectiveness in making the desired intervention in the human body.

Modern genomics and proteomics provide new tools: rapid and high-throughput empirical laboratory processes and computationally based drugdesign. When it can be used, computational analysis is much faster thanlaboratory experimentation. In either case, specific knowledge at themolecular level leads to drugs that are more specific, and thus make

possible the desired intervention with fewer negative side effects orconsequences.

The second step in the process is to perform toxicity and safetyscreening. The pathogen to hit process took five to six years a decade ago,

but now occurs in about half that time or less. In limited cases, modernadvances have created reasonable drug candidates in as little as ninemonths. It appears that the same tools that can reduce the pathogen to hitduration will be useful in shortening the toxicity and safety screening

process. Further, increased quality of hits can be expected to lead to better performance in later screens.

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The pharmaceutical industry drives this research. However, there is arole for DoD that is not being addressed by others. Reference databasesfor bioagent threats are needed to perform the computational pathogen tohit step, and DoD can play a role in building these databases. The

Department should also leverage its computational expertise to acceleratefirst-principles approaches and build a research and development (R&D)

bridge to the pharmaceutical industry, academia, and governmentagencies.

The task force recommends the Department undertake an initiativethat focuses on further compressing the pathogen-to-hit process, fundedat $200 million per year for five years. In the near term, the initiativewould seek to compress the pathogen to hit process from years to months,in the mid-term from months to weeks, and in the longer run to compressthe toxicity and safety screening processes by a comparable amount. Acollateral benefit of this research would be to lower the cost of developingdrugs that are relevant to the military, but that the drug industry is notmotivated to pursue. While it is but one of the steps required indeveloping an integrated biological warfare defense, possession of a

process that can quickly develop an effective therapeutic response to pathogens would itself be a deterrent against the use of biologicalwarfare agents.

C HALLENGE #2:F INDING D IFFICULT T ARGETS _________________________

Recent operational experiences indicate a need to improve themilitarys ability to find targets that are concealed by camouflage, foliage,or structure, or that are underground; to identify moving targets, especiallyin adverse weather; and to discriminate decoys from real targets. In thePersian Gulf, for example, approximately 6,000 allied sorties were flownagainst SCUD TELs, but none were actually found. In Kosovo, manytank kills were strikes on decoys.

There are a variety of airborne sensors in existence with a range ofcapabilities for remote sensing. The data from these sensors must be

brought together, correlated, and assessed to translate the data intoinformation. New capabilities to process enormous volumes of data arethus required, as well as some limited creation of additional sensorcapabilities. The extensive use of unmanned aerial vehicles (UAVs) from large, high-altitude platforms to micro-air-vehiclescan enhanceremote detection.

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The United States needs a fully integrated, layered intelligence,surveillance, and reconnaissance capability. The task force believes thatwith a more focused effort over the next decade progress in developingsuch a system is possible. Funding should be increased by an additional

$200 million per year.

Microsensor Networks

Proliferated surface sensors can provide another tier of a layereddefense, complementing airborne sensors and UAVs. Technologicaldevelopments in microsensorsmaking them more capable, smaller, morediverse, and lower in costas well as advances in adaptive networks

provide an opportunity to develop the surface-sensing tier. Thesemicrosensors would be dispensed in great numbers in targeted areas, basedon cueing from longer-range assets. Local ground nodes with higher

power would interrogate the microsensors, use the Global PositioningSystem (GPS) to locate them, and would communicate information backto an airborne communication vehicle. These sensors would essentiallylook up and around, and would have the potential to observe hiddentargets in close proximity.

The goal of a microsensor S&T program, with funding increasing to$100 million per year, is to affordably increase the probability ofdetection and correct identification of increasingly difficult targets those that are movable, under foliage, in buildings, or underground . Thekey to finding and identifying difficult targets is integrated operationsamong all surveillance layers. The microsensors are one very important

component of that overall operational concept; they must be both effectiveand individually inexpensive since proliferation in very large quantities(such as tens of thousands) will be the key to their contribution.

C HALLENGE #3:M AKING T IMELY , A CCURATE DECISIONS _________________

Today, military planning takes a long time. As a result, planningoccurs well before a mission and may result in stale plans that do notreflect reality at the time of execution. Planning time needs to be reducedfrom days to hours, so that operations can be executed at a speeddetermined by the commander, not the supporting information system. Acommander must be able to turn within the decision time frame of anadversary. The task force believes that a more focused, expanded

program can result in a much more effective integrated, automated

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decision support system, capable of being used to synchronize bothindividuals and groups in joint and combined operations .

The development of an integrated, automated decision support systemshould be driven by demonstrations of its various elements, which willinclude automated decision support services as well as self-configuring,self-healing mobile networks. These component demonstrations shouldculminate in integrated technology demonstrations that focus on systemsurvivability that is tolerant of degradation.

While the civilian sector leads in communications and networkresearch, its network requirements differ from those of the military. In

particular, much of the infrastructure of a civilian network is fixed; for themilitary, these networks must typically be mobile. Thus, the Departmentsresearch must focus on its unique requirements, while leveraging civilianR&D. Science and technology funding to support these needs should

increase by $150 million per year.

Massive Multi-Player Gaming

A new cultural and technical phenomenonmassive multi-playervirtual environmentsoffers the potential for a new way to devise and toexplore military concepts. A virtual environment provides a platform inwhich many participants can participate regardless of location. Inaddition, it provides an environment that inexpensively supports free-formexperimentation. Such experimentation fosters the generation of moreoptions and may result in faster, or more innovative, concept development.In civilian games there is an observed phenomenon called emergent

behaviorthat is, groups of individuals self-synchronize and devise groupstrategies. As supported by information technology, massive multi-playergaming is a new medium in which to explore concept formation; themilitary should experiment with it.

An S&T initiative would leverage the civilian on-line entertainmentindustry, in which the most rapid growth is in massive multi-player games.The goal is to create a military toolkit with virtual environments thatsupport the involvement of active military in the field. The programwould support exploration in unrestricted play, identifying both creativeconcepts and individuals. The DoD S&T challenge is to understand,

identify, and capture a useful record of emergent behavior in order todiscover new concepts that emerge in an environment in which hierarchydoes not dominate.

The task force advocates an experimental program in which the Joint Warfare Center or EUCOM Warrior Preparation Center acts as

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the concept-testing master overseeing experimental use of the toolkit.To complement that activity, DARPA should explore innovativerelationships with the gaming community and sponsor research onautomatic detection and analysis of emergent behavior.

Within the first 18 months, the Department should experiment withoff-the-shelf game engines supporting about 100,000 players. Over a five-year period, the program should build to a dedicated DoD conceptexploration system potentially involving up to a million players in avariety of virtual environments. 6 The peacetime doctrine and conceptdevelopment process is currently centralized, hierarchical, and time-insensitive. It involves very few individuals. Massive multi-player gamesoffer an alternative that should be explored to determine whether it

provides value.

C HALLENGE #4:E NABLING H IGH -R ISK O PERATIONS _____________________

The fourth transformational challenge is to enable high-riskoperations. The highest number of military casualties occurs in closecombat; 85 percent of U.S. casualties occur within infantry. Unmannedsystems offer the potential to effectively engage the adversary whilelessening friendly losses. Advances have been made in software agentsand robotic control technology, which can accelerate the development ofunmanned systems. The task force advocates a focused expansion ofexisting S&T programs in unmanned systems, driven by demonstrations

that have specific operational goals. The task force recommends two demonstrations. By 2006, there

should be a platoon-sized demonstration of an urban assault in a free-firezone. This demonstration would achieve an integration of combat effectsthrough a mix of manned and semi-autonomous systems. The seconddemonstration, in the 2010 timeframe, would expand to a company-sized,autonomous search and clearance of urban buildings. In this case,unmanned systems would be expected to operate in a more challengingenvironment where mission duration and mobility would be consistentwith operational tempo.

6 Potential players include active, reserve, and National Guard forces; developmentorganizations; industry; academia; and the test and evaluation community.

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Human Performance

Demands on the warfighter are growing as forces operate with anincreased operational tempo, using increasingly sophisticated systems.Improving human performance is one way to advance warfightingcapabilities. Medical science has myriad techniques to restore disabledfunctionalitytechniques that can also be applied to enhance normalfunctionality. Examples include increasing strength, memory, or sensory

perception; decreasing requirements for sleep and food; and altering perceptions of pain. New opportunities in cognitive psychology, cellsignaling and regulation, advanced therapies, sensors, implants, artificialorgans, and drugs can be tapped.

For example, profilinglong used for pilots and special operationsofficerscan be extended to identify superior warfighters using geneticscreening factors for cognitive abilities, reflexes, cardiac capability, and

strength. Advances in medical technology could help with prevention,treatment, and careboosting immunity, accelerating natural healingresponses, or stabilizing injuries. Advances in understanding of enduranceand physical performance can result in training benefits. Funding of $30million per year is recommended to begin a program focusing on human

performance with well-chosen, very specific goals.

LONG-TERM RESEARCH _________________________

The science and technology program must include an element of long-term research in those areas that have the most potential for military

application. It is critical that the DoD explore emerging technology, with aclear focus on potential future military capability. DoD-sponsoredresearch in high-risk areas is also necessary to prevent technologicalsurprise. The task force highlights just two key areas to illustrate researchthat might enable dramatically new military capability: nanotechnologyand quantum information technology.

Nanotechology

It is now possible, in the laboratory, to design and manufacture at theatomic scale. For example, nanoscale electronics have been demonstrated

that allow 16-bit molecular memory at 10 times the density of siliconCMOS. As nanotechnology matures, the potential for military applicationis great. It may be possible to design materials with the weight of plasticand strength of steel for ultra-lightweight combat vehicles. Pipes, hoseand aircraft skin materials may be made ultra-durable and self-repairing.

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The Department of Defense is already part of a multi-governmentagency initiative in this area, with a total investment that is in excess of ahalf a billion dollars per year and growing. DoD should focus on thefundamental research questions most related to the potential for new

military capability and not likely to be adequately addressed with high priority elsewhere. Such questions include precise control of the size,separation, and placement of nanoscale components; connections betweennano and macroscales for high-strength materials and electronics;fabrication of polymer nanocomposites; molecular recognition and signaltransduction in nanoscale biomolecular systems; and deformation, fatigueand fracture of nanostructures. To address these questions, the task force

believes that an additional investment of $100 million per year iswarranted.

Quantum Information Technology

Control and detection of electron spin creates the potential forquantum computing and communication. Theory predicts that a quantumcomputer can factor large numbers quickly, and thus break todaysencryption schemes. But it also offers the potential for unbreachablecommand and control, clock synchronization, and robust GPS. The theoryfor quantum computation is not yet well understood.

Quantum communication has been demonstrated in the laboratory andhas potential for revolutionary capability. While practical realization ofthese capabilities is still a long way off, the United States cannot afford tohave others get there first, and the United States does not currently lead in

quantum research. DoD needs to invest sufficiently to stay in the game.The task force recommends that the Department increase its investment by$75 million per year.

S&T INVESTMENTSTRATEGY

The task force believes that the four transformational challengesdescribed above are appropriate investment priorities for the Department.The new initiatives identified, together with ongoing initiatives and othersthat will be developed, can offer a comprehensive program to addressthese challenges. Figure 1-3 summarizes the recommended investment ineach of the areas discussed above and also shows an estimate of current

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investment in that area. To be effective these programs need to besupported by increased investment and more focused management.

S&T I NVESTMENT :R ECOMMENDATION #1 _______________________________

The new resources required to fund the S&T initiatives recommendedin the previous sectionincreases in ongoing S&T programs, new S&T

projects, and long-term researchshould eventually reach a total of about$1.8 billion annually. The task force believes that it is possible to fundthese initiatives by reprioritizing 15 to 20 percent of the investmentswithin the current $9 billion S&T budget over the next two to three

years.

Figure 1-3. S&T Investment

HumanPerformance

MassiveMulti-Player

Gaming

Micro-SensorNetworks

Pathogen toHit

New S&T Projects

UnmannedSystems

DecisionTools

Network S&T

ISR S&T(sensors,

exploitation)

BW DefenseS&T


Enabling High Risk Operations

HumanPerformance

MassiveMulti-

Gaming


Pathogen toHit

New S&T Projects

UnmannedSystems

DecisionTools

Network S&T

ISR S&T(sensors,

exploitation)

BW DefenseS&T


Finding DifficultTargets


QuantumNano-technologyLong TermResearch

Current Funding (est)~ $1.7BIncreased Funding~$1.8B

$250 +$750M

$0 +$200M $50 +$100M $0 +$20M $150 +$30M

$50 +$150M$250 +$150M$650 +$200M

$150 +$100M

$100 +$75M

Defending Against

Biological Warfare

MakingTimely,

AccurateDecisions

Reprioritizing the current program should be the primary path tofunding S&T for the transformational challenges described in the previoussection. Reprioritization would target funding cuts at programs with loweroutput potential, making it possible to increase investment in other areaswithout losing any significant output from the S&T system. Terminationof programs or funding reductions should be considered when:

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Technology is clearly lagging behind that in the commercialworld.

DoD can rely on commercial technology and broadlyunderstands it.

Effort is sub-critical in size.

Output is likely to have limited application.

Unproductively redundant efforts are ongoing in multiple places.

Successful conclusion will not make a material difference.

DoD can otherwise anticipate low value in payoff.

In addition, the task force recommends that most of the funding foradvanced concept technology demonstration (ACTDs), currently about

$500 million/year, be funded from the 6.4 account but executed by S&T participants; this recommendation is consistent with the purposes andobjectives of ACTDs.

Recommendation #1S&T Investment

The Secretary of Defense should Achieve and sustain investment in S&T of 3% (of the top

line DoD budget).

The Under Secretary of Defense for Acquisition,Technology & Logistics [USD (AT&L)] should

Direct reprioritization of S&T to fully fund the S&Tinitiatives outlined, within the S&T budget. Start now and complete within 9 months.

Provide $500 million of 6.4A funds to move current ACTDs from 6.3 and use current 6.3 funds as part offunding of new initiatives.

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M ANAGING S&T I NITIATIVES :R ECOMMENDATION #2 _______________________________

Management of the recommended S&T initiatives should takedifferent forms for different projects, as illustrated by the shaded grayareas in Figure 1-4.

The Defense Threat Reduction Agency (DTRA) should be assignedresponsibility for managing a focused biological warfare defense program.The other ongoing S&T programsISR, decision tools and networks, andunmanned systemsneed a focused management approach that drawstogether the spectrum of technologies being pursued in manyorganizations and provides coherence in their execution. A single focal

point within the Director, Defense Research and Engineering (DDR&E) tomanage each of these efforts is recommended.

Figure 1-4. Management Approach

It is essential that a program manager have true control of the funds ina given area, and that is not the case today within the Office of theSecretary of Defense. Twenty years ago, the DDR&E used an authoritycalled Format I to exercise that control, but its use has since beendiscontinued. The Format I was essentially a notification to the

MassiveMulti -playerGaming


Pathogento Hit

New S&TProjects

UnmannedSystems

DecisionTools NetworkS&T

ISR S&T(sensors ,exploitation)

BWDefenseS&T

FocusedOngoing S&TPrograms

Quantum NanotechnologyLong TermResearch

DTRA focal pointIncrease $750M/yr Base $250M/yr

Single Focal Point in DDR&E for each. Reinstate and use Format - I. Strong customer voice and pull ($). Increase $500M/yrBase $950M/yr

DARPA: Manage as Focused Projects Increase $350M/yr Base $200M/yr

Scattered but coordinated efforts. Increase $175M/yr Base 250M/yr

Total: Increase ~$1.8B on Base of ~$1.7B

HumanPerformance


Defending Against

BiologicalWarfare

FindingDifficultTargets

Making Timely,

AccurateDecisions

EnablingHigh Risk

Operations

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Comptroller that appropriated funds should not be released to a Service oragency until and unless the DDR&E approved the program. Without thisor some equivalent teeth, the DDR&E does not have the authority toeffectively manage diverse efforts.

The project-oriented approach of the Defense Advanced ResearchProject Agency (DARPA) is the appropriate way to execute the new S&T

projects, to be funded at $350 million per year above the current $200million annual investment. Finally, the long-term research should beexecuted, not as a focused program, but by a broad range of institutions,loosely coordinated in their efforts, as is the case today.

Recommendation #2Managing S&T Initiatives

The USD (AT&L) should Establish single focal point for biological warfare

defense S&T. Reinstitute the Format-I to provide muscle for the

DDR&E to effectively control focused ongoing S&Tprograms

PROCESS IMPROVEMENTSIN THE S&T ENTERPRISE

There is an imperative related to each of the transformationalchallenges: the need to capture and exploit technological advances that are

progressing largely in the commercial worldand that are progressing atgreat speed. In some cases, such as for the biological sciences, these arecommercial communities with which the Department of Defense has fewties or long-term relationships. Technology is pushing the Department tothink differently, to use information and products in new and differentways, to explore ideas that may challenge traditional concepts.

The Departments science and technology enterprise must becomemore agile, more flexible, and more adaptive to be effective in thischallenging environment. It must establish new ties with newcommunities. And most importantly, it must take a fresh approach to

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technology transition to be more responsive to the rapid pace of changeelsewhere in the world.

Over the last decade, the Defense Science Board alone has conductednearly three-dozen studies on improving processes in the S&T enterprise.Topics have included strategies related to the technology base, the DoDlaboratories, technology transition, commercial industry participation,access to commercial technology, ACTDs, and acquisition and

procurement. Together these reports put forward a rich set ofrecommendations, most of which are still relevant today. What is needednow is implementation.

Drawn from this body of work, this task force has identified twoareas that have the potential to transform the entire S&T, acquisition,and requirements process . They are

Assuring access to developing commercial technology.

Adopting an integrated process of operationalexperimentation, spiral development, and transition oftechnology to users.

In addition, the task force believes it is important to comment on andmake suggestions regarding one long-standing and much-studied problem:rejuvenation of the DoD laboratories .

The following sections summarize the task force views andrecommendations on each of these issues. Addressing them cansignificantly improve the effectiveness of the DoD S&T investment.

ACCESS TO C OMMERCIAL T ECHNOLOGY :R ECOMMENDATION #3 _______________________________

The Department of Defense no longer leads the development oftechnology in many important areas, such as information technology,

biology, and microelectronics. Nonetheless, these commercialtechnologies are essential in enabling the nations future militarysuperiority. Because of its complex system of procurement regulationsand processessuch as accounting and information systemrequirementsthe Department continues to deny itself access to many

industries.To improve access to commercial industry and ensure continued

exploitation of commercially developed technology, the task forcerecommends a three-pronged approach. First, DoD must provide theincentives within the Department to turn to commercial products,

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practices, and processes as the norm rather than the exception. To havereal impact these incentives should focus on the program managers, whowork directly with commercial industry. Second, the Department mustreduce the barriers, identified in many past studies, which inhibit

commercial firms from working with DoD contractors and with the DoDdirectly.

Finally, the Department must foster relationships and create newincentives with critical technology sectors to motivate them to apply theirknowledge and people to critical national security challenges. In

particular, DoD must find ways to work more closely with the biotechnology and pharmaceutical industries, research institutes, and othergovernment agencies engaged in biological research. The Departmentneeds to take advantage of the current Secretarys understanding of the

pharmaceutical industry and the task force believes the Secretary musttake the lead. In addition, the Secretary needs to forge a relationship withthe Secretary of Health and Human Services (HHS). The NationalInstitutes of Health and Center for Disease Control, both agencies of theDepartment of Health and Human Services, and DoD should begin towork together more closely, particularly in addressing elements of

biological warfare defense.

Recommendation #3Access to Commercial Industry

The USD (AT&L) should Mandate commercial practices, tools, techniques,

components, software, and materials in DoD systems byestablishing commercial technology as the norm; require

justification for DoD-specific technology. Develop and implement acquisition processes that

remove barriers and create incentives for commercialcorporations to support DoD.

The Secretary of Defense should Personally engage with the biotech and pharmaceutical

industries to build relationships with DoD and createeffective partnerships.

Forge a close relationship with the Secretary of HHS.

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AN INTEGRATED P ROCESS ____________________________

Potential adversaries have increasing access to the most advancedtechnologies from global and commercial sources in much the same

timeframe, as does the Department of Defense. The Department mustdramatically improve its S&T and acquisition processes or risk being out-

paced by its adversarieswhich at its extreme could result in the UnitedStates facing opponents with more advanced capabilities in critical areas.

The current technology transition process involves four separate anddistinct communities: science and technology, acquisition, test, and user.Each of these communities has different people, different mindsets, andare funded from different program elements. Real cooperation is theexception rather than the rule. More the norm is a process bestcharacterized as over the transom rather than one of spiral developmentand collaboration, as discussed below.

Within this environment, ACTDs provide some opportunity for theS&T and user communities to work together. But there is weakinvolvement by the acquisition and test communities, and programs tendto go directly from an ACTD into the System Design and Developmentacquisition phase. In some cases more accelerated acquisition would be atleast as effective and yet more cost-effective. Operationalexperimentation and spiral development, properly executed, force a moreintegrated approach and provide the basis for an improved technologytransition process.

Operational Experimentation: Recommendation #4Operational experimentation addresses all three elements of the

military transformation processchanges in organization of forces,changes in doctrine and tactics, and changes in technology.Experimentation is quite different from exercises, training, anddemonstrations. Experiments are typically small, with only tens tohundreds of participants. They are supported by extensive use of simulatedcapabilities and are conducted in an environment that encourages risktaking and considers learning to be the definition of success. The value ofexperimentation is to pursue many options and ideas and to provide aforum for collaboration between the operational warfighter andtechnologists.

The Department needs to form experimental units in each of theServices and at the joint level. These units should consist of dedicatedcommand staffs and equivalent dedicated operational red teams oropposing forces. Other forces would be assigned to these units,

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appropriate to each series of experiments. The technology of massivemulti-player environments, discussed previously, could play a significantrole in this process.

Spiral Development

Spiral development is an iterative process that links users todevelopers through an approach that is common commercial practice forcontinuous development and deployment of both software and hardware.The concept is to explore many technology options via experiments andACTDs. Those that demonstrate promise are rapidly deployed to the fieldin limited quantities as Block 1 systems. Inherent in the process is thatthe systems are likely to contain some weaknesses in the Block 1deployment, but increasing capabilities will be fielded in subsequentblocks through a continuous development process.

The advantages of spiral development are many: more rapiddeployment of advanced systems, lower cost development at lower risk,and a larger number of generated and demonstrated technology options.Spiral development has been institutionalized in directives by the UnderSecretary of Defense for Acquisition, Technology, and Logistics and theVice Chairman, Joint Chiefs of Staff, but it is a process that has yet to gainthe kind of widespread use that the task force encourages.

Recommendation #4Operational Experimentation

The CJCS should Form experimental units in each Service and Joint

Forces Command. Form corresponding, dedicated operational red teams. Assign senior points of responsibility for fostering

operational innovation and full use of experimentation. Suggest Vice Chiefs and J-8 with accountable

responsibility


Provide funds for Joint and multi-Serviceexperimentation. Fund and support increased use of ACTDs.

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A New Technology Transition Process: Recommendation #5

The science and technology and acquisition processes need to beconsidered as a single enterprise not as individual entities that handoff a

product from one to the other. Within this enterprise, the purpose of thescience and technology community is to generate options andopportunities for the warfighter. These options are tested in operationalexperiments where their military value and usefulness can be assessed.Some experiments will transition to ACTD-like activities and others willspawn acquisition programs directly. The current process is illustrated inFigure 1-5, where the entries in bold are occasionally included but moreoften are not. In addition, while the USD (AT&L) has stronglyencouraged shortening the time between Milestone A and Milestone Cfrom five to seven years, this is persuasion rather than law.

Figure 1-5. Current Technology Transition Process

The task force believes that significant changes are needed to moreclosely integrate operational experimentation, spiral development, andtechnology transition. These changes will create technology pull for theS&T base and provide a path for technology to reach the user.

First, S&T should be driven by a 5-year acquisition cycle. The five-to-seven-year acquisition process suggested by the USD (AT&L) should bemandated as a five-year rule. The shorter timeframe will alter the

RedThinking S&T

OperationalExperiments

ACTD-likeactivities

AcquisitionPrograms


S&T

6.4a

6.4a

Block 1Block 2

Block 3

Field inSpiral

Development

Very Limited

RedThinking S&T

OperationalExperiments

ACTD-likeactivities

AcquisitionPrograms


S&T

6.4a

6.4a

Block 1Block 2

Block 3

Field inSpiral

Development

Very Limited

Very Limited

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dynamics of the whole process and create a sense of urgency in the entireenterprise. Today the S&T community has limited coupling to thewarfighter and acquisition communities, and what does exist is relativelyartificial. So a pull for S&T from these communities is critical to a

more dynamic and iterative processes.Another critical element is red teaming throughout the processusing

a smart adversary to challenge all concepts. Within the process, rapidspiral development and operational experimentation are inseparable. Thetask force also believes that ACTDs needs to be expanded as a customerfor S&T development and a vehicle for promoting early involvement ofthe users.

This new technology transition process, illustrated in Figure 1-6, willoutpace old habits. In particular, the current inherent delay in transition oftwo and one-half years that results from the Planning Programming and

Budgeting System (PPBS) cannot be tolerated. The Department mustwork with Congress to provide flexible funding to proceed immediately toacquisition for promising programs. Such an initiative would be similar tothe Rapid Acquisition Program (RAP) authority granted to the Army.

Figure 1-6. A New Technology Transition Process

Red Thinking

&

Red Teams

S&T

(Opportunities, ideas,flashes of insight)

Operational ExperimentsConcepts of Employment,usefulness/military value)

ACTD-likeactivities

(Augment)

Acquisition Programs

Limited Buys

S&T

6.4a

6.4a

MS-A

MS-C

MS-B

5yrs

Block 1Block 2

Block 3

Field inSpiral

Development

Whats New

S&T driven by 5-yearacquisition cycle

Pulls S&T Dynamic & iterative

Red teaming & action

Rapid spiraldevelopment

More experimentsbringing playerstogether

Expanded ACTDs asthe S&T customer

Rapid acquisition funds

BlueThinking &

Operations


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The newly created Force Transformation Office can play an importantrole in implementing a more integrated technology transition process. Thetask force has identified three specific areas. First, the transformationoffice can be the advocate to foster real experimentation. It can be a focal

point for coupling S&T products to the warfighters, identifying andsupporting worthy experimentation candidates, and providing focus for

joint and multi-Service experimentation in close cooperation with JointForces Command (JFCOM). This office could also take responsibility forACTDs and in doing so be well positioned to exploit potential synergies

between experiments and ACTDs. Finally, the office needs to haveavailable, rapid acquisition resources to pull forward promising resultsfrom experiments and ACTDs.

Funding required for this process is modest. The task forcerecommends new 6.4A funding for experimentation and transitionactivities, growing over several years to $1.4 billion. This is the totalbudgetary increase that applies to implementation of all processrecommendations in this report . This amount would include $200million per year to sponsor operational experimentation, supplementingService experimentation funds with an emphasis on joint efforts.Resources for ACTDs need to grow to $1 billion per year, double currentfunding. The resources for ACTDs would include new 6.4A funds toreplace current 6.3 ACTD funding, previously discussed, withapproximately $250 million of the $1 billion in OSD and the remainder inthe Services.

Finally, the task force recommends $200 million in funding to bridge

the PPBS gap for rapid transition of successful ACTDs and experiments;this investment would supplement the current $150 million of RAP.

The task force believes that these resources can be generated fromrecent and proposed changes in the acquisition cycle and that they willlead to faster development at lower risk. The additional fundsrecommended represent less than 5 percent of the Departments currenttotal development funds.

Technology is changing rapidly and requires a more flexible, andresponsive process of transition to the user. The task force believes thatthe changes described will have the needed results.

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Recommendation #5New Transition/Acquisition Process

The USD (AT&L) should Implement new process outlined for innovative concept

development, red teaming, and expansion of ACTDs. Mandate 5-year acquisition cycle.

Give Director of Transformation responsibility for jointoperational experimentation, ACTDs, and transition

Provide 6.4A funds to be the catalyst of change. New funds growing to ~$1.4 billion per year. Approximately $650 million under direct control of

Director of Transformation and balance in ACTDsunder Services.

Responsibility for Joint Research and Development:Recommendation #6

A more integrated technology transition and acquisition process iscritical and will lead to major improvement in rapidly fielding advancedsystems. But there is a special case in the technology transition area thatrequires further action: the lack of a joint development organization forcritical joint warfighting capabilities. Three areas where the problem has

become acute are joint command and control; joint intelligence,

surveillance and reconnaissance; and biological warfare defense.Without a joint development organization, there is no customer pull

and there is no integrated approach to systems or solutions. And perhapsmost important, there is no support to the warfighters in their primary areaof concerncommand, control, communications, and computers andintelligence, surveillance, and reconnaissance (C4ISR). While this

problem has been long recognized, little progress has been made.

The task forces recommendation for joint C4ISR is to assignresponsibility for research and development to Joint Forces Command.JFCOM would be the focal

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